[Federal Register Volume 68, Number 204 (Wednesday, October 22, 2003)]
[Proposed Rules]
[Pages 60305-60313]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 03-26577]


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DEPARTMENT OF THE INTERIOR

National Park Service

36 CFR Part 7

RIN 1024-AD00


Amistad National Recreation Area, Personal Watercraft Use

AGENCY: National Park Service, Interior.

ACTION: Proposed rule.

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SUMMARY: The National Park Service (NPS) is proposing to designate 
areas where personal watercraft (PWC) may be used in Amistad National 
Recreation Area, Texas. This proposed rule implements the provisions of 
the NPS general regulations authorizing park areas to allow the use of 
PWC by promulgating a special regulation. The NPS Management Policies 
2001 directs individual parks to determine whether PWC use is 
appropriate for a specific park area based on an evaluation of that 
area's enabling legislation, resources and values, other visitor uses, 
and overall management objectives.

DATES: Comments must be received by December 22, 2003.

ADDRESSES: Comments on the proposed rule should be sent to the 
Superintendent, Amistad National Recreation Area, HRC 3 Box 5J, Del 
Rio, Texas 78840. Comments may also be sent by email to 
[email protected]. If you comment by e-mail, please include

[[Page 60306]]

``PWC rule'' in the subject line and your name and return address in 
the body of your Internet message. Also, you may hand deliver comments 
to Amistad National Recreation Park, 4121 Highway 90 West, Del Rio, 
Texas.
    For additional information see ``Public Participation'' under 
SUPPLEMENTARY INFORMATION below.

FOR FURTHER INFORMATION CONTACT: Kym Hall, Regulations Program Manager, 
National Park Service, 1849 C Street, NW., Room 3145, Washington, DC 
20240. Phone: (202) 208-4206. E-mail: [email protected].

SUPPLEMENTARY INFORMATION:

Background

Additional Alternatives

    The information contained in this proposed rule supports 
implementation of portions of the preferred alternative in the 
Environmental Assessment published April 3, 2003. The public should be 
aware that two other alternatives were presented in the EA, including a 
no-PWC alternative, and those alternatives should also be reviewed and 
considered when making comments on this proposed rule.

Personal Watercraft Regulation

    On March 21, 2000, the National Park Service published a regulation 
(36 CFR 3.24) on the management of personal watercraft (PWC) use within 
all units of the national park system (65 FR 15077). This regulation 
prohibits PWC use in all national park units unless the NPS determines 
that this type of water-based recreational activity is appropriate for 
the specific park unit based on the legislation establishing that park, 
the park's resources and values, other visitor uses of the area, and 
overall management objectives. The regulation banned PWC use in all 
park units effective April 20, 2000, except that a grace period was 
provided for 21 parks, lakeshores, seashores, and recreation areas. The 
regulation established a 2-year grace period following the final rule 
publication to provide these 21 park units time to consider whether PWC 
use should be allowed to continue.

Description of Amistad National Recreation Area

    Amistad National Recreation Area lies along the United States-
Mexico border near Del Rio, Texas. The unit consists of 57,292 acres of 
land and water and is a man-made reservoir resulting from the 
construction of a dam at the confluence of Devils River and the Rio 
Grande. The reservoir is 1,117 feet above sea level at the normal 
conservation level, and the park boundary continues 83 miles northwest 
up the Rio Grande, 25 miles north up the Devils River, and 14 miles 
north up the Pecos River. The park boundary varies but is generally at 
the elevation mark of 1,144.3 feet above mean sea level, and the lake 
level fluctuates in relation to this. The international boundary 
between the United States and Mexico falls in the middle of the Rio 
Grande River. The International Boundary and Water Commission has 
placed buoys in the center of the channel for the first 28 miles but 
the reservoir is otherwise unmarked. The Mexico side of the reservoir 
does not have any protected status, thus the NPS does not generally 
consult with Mexican officials on matters such as boating management in 
a formal sense.
    Amistad is home to a rich archeological record and world-class rock 
art. Within or immediately adjacent to park boundaries are four 
archeological districts and one site listed on the National Register of 
Historical Places.
    Amistad National Recreation Area supports a wide variety of boating 
activities throughout the year, including PWC use, powerboating, 
waterskiing, houseboating, boat fishing, sightseeing by boat, 
sailboating, sailboarding, canoeing, and kayaking. Amistad receives 
over 1,000,000 visitors a year and issues approximately 5,000 lake use 
permits annually.

Purpose of Amistad National Recreation Area

    The purpose of Amistad National Recreation Area is to provide 
visitors and neighbors with opportunities and resources for safe, high-
quality public outdoor recreation and use of Lake Amistad; to develop 
and maintain facilities necessary for the care and accommodation of 
visitors; and to support the concepts of stewardship and protection of 
resources and environmental sustainability by practicing and 
interpreting their application in a unit of the national park system.

Significance of Amistad National Recreation Area

    According to Amistad's 2001-2005 strategic plan, the primary 
significance of Amistad National Recreation Area can be summarized as: 
(1) Offering diverse water-based recreational opportunities, especially 
fishing; (2) interpreting exceptional examples of Lower Pecos 
archeology and rock art and; (3) commemorating a water conservation 
partnership between the United States and Mexico.

Authority and Jurisdiction

    Under the National Park Service's Organic Act of 1916 (Organic Act) 
(16 U.S.C. 1 et seq.) Congress granted the NPS broad authority to 
regulate the use of the Federal areas known as national parks. In 
addition, the Organic Act (16 U.S.C. 3) allows the NPS, through the 
Secretary of the Interior, to ``make and publish such rules and 
regulations as he may deem necessary or proper for the use and 
management of the parks * * *''
    16 U.S.C. 1a-1 states, ``The authorization of activities shall be 
conducted in light of the high public value and integrity of the 
National Park System and shall not be exercised in derogation of the 
values and purposes for which these various areas have been established 
* * *''
    NPS' regulatory authority over waters subject to the jurisdiction 
of the United States, including navigable waters and areas within their 
ordinary reach--as with the United States Coast Guard; and non-
navigable waters that are administered by the NPS, is based upon the 
Property and Commerce Clauses of the U.S. Constitution. In regard to 
the NPS, Congress in 1976 directed the NPS to ``promulgate and enforce 
regulations concerning boating and other activities on or relating to 
waters within areas of the National Park System, including waters 
subject to the jurisdiction of the United States * * *'' (16 U.S.C. 1a-
2(h)). In 1996 the NPS published a final rule (61 FR 35136, July 5, 
1996) amending 36 CFR 1.2(a)(3) to clarify its authority to regulate 
activities within the National Park System boundaries occurring on 
waters subject to the jurisdiction of the United States.

PWC Use at Amistad National Recreation Area

    The park began regularly documenting PWC use on July 4, 1992, but 
the earliest record is from March 1989, when a violation notice was 
issued to an operator for reckless and negligent behavior near a swim 
beach. PWC use became more common between 1990-91, and in May 2001 park 
staff began collecting more specific PWC use data. The highest use 
generally occurs in summer from Friday through Sunday, and in 2001 
ranged from as low as 1 PWC per day up to 35 per day. Park staff 
believes that PWC use is increasing at approximately 1.5% per year.
    Data collected during 2001 and 2002 show that PWC users are a 
consistent part of the total boating population of the lake, and 
holidays show the highest amount of use. The highest PWC-use weekday 
was Wednesday, July 4, 2001

[[Page 60307]]

(a holiday), when 33 PWC trailers were observed parked at boat ramp 
parking lots throughout the recreation area. On that same day, 88 non-
PWC boat trailers were observed in the same parking lots.
    The highest use for a non-holiday weekend occurred on Saturday, 
June 23, 2001, when 26 PWC trailers were observed in parking lots 
throughout the recreation area, compared to 270 non-PWC boat trailers 
in the same parking lots. Visitors were attracted by the 12 largemouth 
black bass tournaments taking place at the lake that day and the 
pleasant weather conditions (bass tournaments occur every weekend 
during the summer). The highest holiday weekend use day was Sunday, May 
26, 2002, when 38 PWC trailers (and 296 non-PWC boat trailers) were 
observed at launch ramps.
    On busy summer weekends, PWC use can comprise between 8% and 20% of 
total boating activity. On summer weekdays this percentage tends to 
increase due to fewer out-of-town bass tournament fishermen on the 
lake. PWC use on summer weekdays can comprise between 19% and 40% of 
total boating activity in the evenings after 6:30 p.m., when local PWC 
owners visit the lake after work.
    PWC use occurs primarily between May and September, with April and 
October also showing steady visitation. Weekday PWC users are primarily 
local residents who arrive after work, while weekend users come from 
areas farther away. PWC users are usually on the water all day on 
weekends. Park staff has indicated that PWC users generally operate for 
two to three hours on weekday evenings, and from four to eight hours on 
weekends. The increased amount of time in the water can be attributed 
to users taking turns riding one craft.
    PWC operators have been observed traveling throughout the lake, 
either singly, in pairs, in small groups, or in association with a 
motorboat or houseboat. Within Amistad National Recreation Area, PWC 
use has been allowed wherever motorized boats have had access. This 
includes the arm of the Rio Grande, the Devils River, San Pedro Canyon, 
and the Pecos River.
    Areas of heaviest PWC use are Devils River north of buoy P and San 
Pedro Canyon east of buoy A. Most of the personal watercraft launching 
from Rough Canyon travel up Devils River. In addition, many personal 
watercraft launching from Diablo East and Spur 454 travel up Devils 
River past buoy P. In contrast, only one or two watercraft travel up 
the Rio Grande past buoy 28. No PWC have been seen using the Pecos 
River.
    The San Pedro arm of the lake (at the end of Spur 454) attracts a 
large number of PWC operators because it is one of the few areas where 
bystanders, usually friends and relatives of the PWC operators, can 
drive close to the shoreline to observe PWC activity or take turns 
riding. As a result, this location is one of the primary destinations 
for PWC operators. Another popular destination for PWC operators is the 
Indian Springs area in the upper Devils River section of the lake. 
While en route to Indian Springs, PWC operators tend to either travel 
in a direct line or explore some or all of the coves between their 
launch and destination points.
    People who rent the 56- to 65-foot houseboats from Amistad Lake 
Marina often tow personal watercraft with the houseboat (two or three 
personal watercraft have been observed being towed). The boats are 
permitted to travel to most areas, so PWC use is dispersed. These 
tagalongs are the only personal watercraft likely to use the upper Rio 
Grande area (north of buoy 28).
    Park staff has never seen personal watercraft used on the Pecos 
River. However, some PWC users may access the Pecos River without park 
staff knowledge. The park estimates that if PWC use occurs in the Pecos 
River, it would amount to less than 10 craft per year.

Resource Protection and Public Use Issues

Amistad National Recreation Area Environmental Assessment

    As a companion document to this proposed rule, NPS has issued the 
Personal Watercraft Use Environmental Assessment for Amistad National 
Recreation Area. The Environmental Assessment (EA) was open for public 
review and comment from April 3, 2003, through May 3, 2003. Copies of 
the environmental assessment may be downloaded at http://www.nps.gov/amis/pwc.pdf or obtained at park headquarters Monday through Friday, 
8am to 5pm, just west of Del Rio at 4121 Hwy 90 W. Mail inquiries 
should be directed to: Amistad National Recreation Area, HCR 3 Box 5J, 
Del Rio TX 78840, Phone (830) 775-7491.
    The purpose of the environmental assessment was to evaluate a range 
of alternatives and strategies for the management of PWC use at Amistad 
to ensure the protection of park resources and values while offering 
recreational opportunities as provided for in the National Recreation 
Area's enabling legislation, purpose, mission, and goals. The analysis 
assumed alternatives would be implemented beginning in 2002 and 
considered a 10-year period, from 2002 to 2012.
    The environmental assessment evaluates three alternatives 
concerning the use of personal watercraft at Amistad National 
Recreation Area. Alternative A would allow PWC use under an NPS special 
regulation in accordance with past park practices, and state 
regulations. That is, after the effective date of a final rule, PWC use 
would be the same as it was before November 7, 2002 when the park 
closed to PWC use under the service-wide regulations at 36 CFR 3.24. 
Alternative B would continue PWC use under a special regulation, but 
specific limits and use areas would be defined. The no-action 
alternative would eliminate PWC use entirely within this national park 
system unit.
    Based on the environmental analysis prepared for PWC use at Amistad 
National Recreation Area, alternative A is the preferred alternative 
and is also considered the environmentally preferred alternative 
because it would best fulfill park responsibilities as trustee of this 
sensitive habitat; ensure safe, healthful, productive, and 
aesthetically and culturally pleasing surroundings; and attain a wider 
range of beneficial uses of the environment without degradation, risk 
of health or safety, or other undesirable and unintended consequences.
    This document proposes regulations to implement alternative A at 
Amistad National Recreation Area.
    The NPS will consider the comments received on this proposal, as 
well as the comments received on the Environmental Assessment when 
making a final determination. In the final rule, the NPS will implement 
alternative A as proposed, or choose a different alternative or 
combination of alternatives. Therefore, the public should review and 
consider the other alternatives contained in the Environmental 
Assessment when making comments on this proposed rule.
    The following summarizes the predominant resource protection and 
public use issues associated with PWC use at Amistad National 
Recreation Area. Each of these issues is analyzed in the Amistad 
National Recreation Area, Personal Watercraft Use Environmental 
Assessment.

Water Quality

    Most research on the effects of personal watercraft on water 
quality focuses on the impacts of two-stroke engines, and it is assumed 
that any impacts caused by these engines also

[[Page 60308]]

apply to the personal watercraft powered by them. There is general 
agreement that two-stroke engines (including personal watercraft) 
discharge a gas-oil mixture into the water. Fuel used in PWC engines 
contains many hydrocarbons, including benzene, toluene, ethylbenzene, 
and xylene (collectively referred to as BTEX). Polycyclic aromatic 
hydrocarbons (PAHs) also are released from boat engines, including 
those in personal watercraft. These compounds are not found appreciably 
in the unburned fuel mixture, but rather are products of combustion. 
Discharges of all these compounds--BTEX and PAHs--have potential 
adverse effects on water quality.
    Under the proposed regulation, PWC would be allowed within Amistad 
National Recreation Area with some locational restrictions. Numbers of 
personal watercraft using the reservoir and adjoining waters during a 
high-use day would likely increase from an average of 32 per day in 
2002 to 37 per day in 2012, an average increase of 1.5% per year. Based 
on current observations it is assumed that 14 personal watercraft would 
operate in the Amistad Reservoir and Rio Grande upstream of the 
reservoir in 2002, increasing to 16 by 2012; and 18 personal watercraft 
would operate in Devils River and San Pedro Canyon, increasing to 21 by 
2012.
    Continuing PWC use under this regulation, as it was before November 
7, 2002, was evaluated in the EA and the analysis determined that PWC 
use would have negligible adverse effects on water quality because of 
improved emissions controls from EPA in place by 2012. (For an 
explanation of terms such as ``negligible'' and ``adverse'' in regard 
to water quality, see page 91 of the Environmental Assessment.) The EA 
analysis found that all pollutant loads would be well below 
ecotoxicological benchmarks and human health criteria. Cumulative 
impacts from PWC and motorized boat use would also be negligible 
through improved emission controls. This proposed rule was also 
reviewed as required by NPS Management Policies to determine if park 
resources would be impaired. Based upon the findings in the EA, the NPS 
has concluded that PWC use would not result in an impairment of the 
water quality resource.

Air Quality

    PWC emit various compounds that pollute the air. In the two-stroke 
engines commonly used in personal watercraft, the lubricating oil is 
used once and is expelled as part of the exhaust; and the combustion 
process results in emissions of air pollutants such as volatile organic 
compounds (VOC), nitrogen oxides (NOX), particulate matter 
(PM), and carbon monoxide (CO). Personal watercraft also emit fuel 
components such as benzene that are known to cause adverse health 
effects. Even though PWC engine exhaust is usually routed below the 
waterline, a portion of the exhaust gases go into the air. These air 
pollutants may adversely impact park visitor and employee health, as 
well as sensitive park resources.
    For example, in the presence of sunlight VOC and NOX 
emissions combine to form ozone. Ozone causes respiratory problems in 
humans, including cough, airway irritation, and chest pain during 
inhalations. Ozone is also toxic to sensitive species of vegetation. It 
causes visible foliar injury, decreases plant growth, and increases 
plant susceptibility to insects and disease. Carbon monoxide can affect 
humans as well. It interferes with the oxygen carrying capacity of 
blood, resulting in lack of oxygen to tissues. NOX and PM 
emissions associated with PWC use can also degrade visibility. 
NOX can also contribute to acid deposition effects on 
plants, water, and soil. However, because emission estimates show that 
NOX from personal watercraft are minimal (less than 5 tons 
per year), acid deposition effects attributable to personal watercraft 
use are expected to be minimal.
    Under the proposed rule, PWC use would be allowed to operate under 
the same conditions as were in effect before November 7, 2002. PWC 
users could operate wherever motorized vessels are authorized. The 
number of personal watercraft using Amistad is predicted to increase 
annually by approximately 1.5%, based on current trends at the unit. 
Baseline data for the 2001/2002 season at Amistad indicate annual use 
at approximately 640 personal watercraft, with each machine assumed to 
operate on the water for an average of four hours per day. The 
predominantly two-stroke engine technology would be replaced gradually 
over time in accordance with the Environmental Protection Agency's 
(EPA) requirements for engine manufacturers so that by 2012 most 
personal watercraft will be the cleaner burning four-stroke type.
    Allowing PWC use at Amistad National Recreation Area at the 
previous levels would result in negligible adverse impacts for all 
pollutants. (For an explanation of terms such as ``negligible'' and 
``adverse'' in regard to air quality see page 100 of the Environmental 
Assessment.) Cumulative emission levels would be negligible for 
PM10, HC, VOC, and NOX. Cumulative CO emissions 
would be at a moderate adverse level for both the short and long term. 
Over the long term NOX emissions would increase slightly, 
with a negligible adverse effect. This alternative would not alter 
existing air quality conditions, with future reductions anticipated in 
PM10, HC, and VOC emissions due to improved emission 
controls. Therefore, the proposed rule would not result in an 
impairment of air quality.

Soundscapes

    The primary soundscape issue relative to PWC use is that other 
visitors may perceive the sound made by personal watercraft as an 
intrusion or nuisance, thereby disrupting their experiences. This 
disruption is generally short term because personal watercraft travel 
along the shore to outlying areas. However, as PWC use increases and 
concentrates at beach areas, related noise becomes more of an issue, 
particularly during certain times of the day. Additionally, visitor 
sensitivity to PWC noise varies from backcountry users (more sensitive) 
to swimmers at popular beaches (less sensitive). Amistad's backcountry 
visitors consist of boaters who camp at undesignated campsites along 
the shoreline.
    The biggest difference between noise from PWC and that from 
motorboats is that PWC repeatedly leave the water, which magnifies 
noise in two ways. Without the muffling effect of water, the engine 
noise is typically 15 dBA louder than it would be while operating 
continually underwater and the smacking of the craft against the water 
surface results in a loud ``whoop'' noise or series of them. With the 
rapid maneuvering and frequent speed changes, the impeller has no 
constant ``throughput'' and no consistent load on the engine. 
Consequently, the engine speed rises and falls, resulting in a variable 
pitch. This constantly changing noise is often perceived as more 
disturbing than the constant noise from motorboats.
    PWC users tend to operate close to shore, to operate in confined 
areas, and to travel in groups, making noise more noticeable to other 
recreationists. Motorboats traveling back and forth in one area at open 
throttle or spinning around in small inlets also generate complaints 
about noise levels; however, most motorboats tend to operate away from 
shore and to navigate in a straight line, thus being less noticeable to 
other recreationists.
    Under the proposed rule, noise from personal watercraft would 
continue to

[[Page 60309]]

have short-term, minor, adverse impacts at most locations throughout 
the use season, and short-term, minor to moderate, adverse impacts 
along the reservoir shoreline and at shoreline camping locations 
because personal watercraft could be heard occasionally throughout the 
day during the peak visitor season. (For an explanation of terms such 
as ``negligible'' and ``adverse'' in regard to soundscape see page 111 
of the Environmental Assessment.) Impact levels would be related to the 
number of personal watercraft, as well as the sensitivity of other 
visitors. Over the long term newer engine technologies could result in 
reduced noise levels.
    Cumulative noise impacts from personal watercraft, motorboats, and 
other visitors would be short term and minor to moderate because these 
sounds would be heard occasionally throughout the day. For the most 
part, natural sounds would still predominate at most locations within 
the national recreation area. The highest sound impacts would occur 
near boat launches, beaches, and marinas. Therefore, this alternative 
would not result in an impairment of the Amistad National Recreation 
Area's soundscape.

Wildlife and Wildlife Habitat

    Some research suggests that personal watercraft affect wildlife by 
interrupting normal activities. This is thought to be caused by PWC 
speed, noise, and access. Flight response is the most likely impact of 
PWC use. PWC use can affect an animal's ability to feed, rest, and 
breed if it is unable to adapt to the disturbance caused by PWC 
operations. Impacts to threatened or endangered or sensitive species 
are documented under ``Threatened, Endangered, or Special Concern 
Species.''
    Under the proposed rule, PWC use could affect wildlife wherever use 
is authorized. Numbers of personal watercraft using the reservoir 
during a high-use day would likely increase from an average of 32 per 
day in 2002 to 37 per day in 2012, an average increase of 1.5% per 
year. While some PWC use occurs year-round, most use occurs from May to 
September. PWC use is most frequent during weekends, followed by 
weekday evening hours. While personal watercraft would be distributed 
throughout the reservoir, the primary location for potential impacts 
would be where PWC use is most prevalent: the San Pedro arm of the 
reservoir (at the end of Spur 454) and the Indian Springs area in the 
upper Devils River. Disturbance could occur on the Rio Grande from PWC 
users beaching their craft. The Pecos River contains rocks that would 
make it difficult for PWC operators to disturb wildlife there, and only 
about 10 PWC visits occur there each year. Since no PWC operation would 
be allowed between sundown and sunrise, impacts are less likely for 
nocturnal than for diurnal species.
    Wildlife are most likely to be found near the shoreline due to 
habitat constraints, with few non-aquatic species present on the water 
surface 200 feet (or more) from shore. Under 36 CFR part 3, Amistad 
adopts Texas State laws and regulations. Texas boating regulations 
require that when a PWC user travels to a shoreline destination, the 
watercraft must be slowed to a flat wake speed, thus allowing wildlife 
to easily move out of the way or wildlife on land are less disturbed by 
the PWC presence. There have been no documented cases of PWC operators 
deliberately harassing or chasing birds or other wildlife on Lake 
Amistad, and no documented collisions with waterfowl or wildlife.
    Waterfowl migrate to Amistad during the winter when there is less 
PWC use. The primary season for PWC use is May to September and most 
personal watercraft are not used in the early spring due to water and 
air temperatures. Therefore it is unlikely that most wildlife would be 
disturbed during the breeding season. During rearing, PWC use could 
cause short-term temporary effects when the craft are beached on land. 
Due to the low habitat productivity, as well as the low number of PWC 
users, impacts to wildlife and wildlife habitat would be negligible at 
most locations. (For an explanation of terms such as ``negligible'' and 
``adverse'' in regard to wildlife and wildlife habitat see pages 116-
117 of the Environmental Assessment.)
    As noted in the ``Water Quality'' section, continued use of PWC 
would create pollutant loads that are well below water quality criteria 
and ecotoxicological benchmarks, so there would likely be no or 
negligible impacts to fish related to water contamination. Also, fish 
generally will flee to avoid personal watercraft, and PWC use is not 
expected to significantly disrupt any spawning areas, since a majority 
of the spawning activity occurs during the shoulder season of PWC use 
(February through April).
    Since PWC users are required to operate at flat wake speed within 
50 feet of the shoreline (in accordance with Texas Water Safety Act), 
impacts on wildlife and wildlife habitat would be negligible at most 
locations. The effects from PWC speed and noise or proximity to 
wildlife would be limited as well. In addition, few wildlife occur on 
the open water, where speeds are higher. On a cumulative basis, all 
visitor activities would continue to have negligible to minor adverse 
effects on wildlife and wildlife habitat. All wildlife impacts would be 
temporary and short term. Implementation of this proposal would not 
result in an impairment to wildlife or wildlife habitat.

Threatened, Endangered, or Special Concern Species

    The Endangered Species Act (16 U.S.C 1531 et seq.) mandates that 
all Federal agencies consider the potential effects of their actions on 
species listed as threatened or endangered. If the National Park 
Service determines that an action may adversely affect a federally 
listed species, consultation with the U.S. Fish and Wildlife Service is 
required to ensure that the action will not jeopardize the species' 
continued existence or result in the destruction or adverse 
modification of critical habitat. With regard to the federal status 
species, the American peregrine falcon, black-capped vireo, brown 
pelican, interior least tern, and whooping crane (all listed as 
endangered) may occur within Amistad National Recreation Area. The 
arctic peregrine falcon, bald eagle, and piping plover, and Devils 
River minnow (all listed as threatened) may also occur within the park.
    Among the listed species, the interior least tern has habitat 
closest to the use areas. Interior least terns lay eggs in the ground 
and often use the islands within the lake as nesting areas. The park 
closes all tern nesting areas to public use, including PWC and other 
vessel access, by posting signs in the water. Other species of birds 
always nest high enough above ground not to be affected by PWC-related 
wave action or shoreline access.
    Overall, PWC use at Amistad under this proposed rule would have no 
effect or would not likely adversely affect any federal or state listed 
species, since most identified species are either not present as 
permanent residents, do not have preferred habitat in PWC use areas, or 
are not normally accessible. (For an explanation of terms such as 
``negligible'' and ``adverse'' in regard to threatened, endangered, or 
special concern species see page 122 of the Environmental Assessment.) 
Cumulative effects from all park visitor activities are not likely to 
adversely affect these species since the identified species are not 
present, do not nest in the park, or are not accessible during the 
course of normal visitor activities, which are primarily water-based 
recreation. Therefore, this proposed rule would not result in an 
impairment of

[[Page 60310]]

threatened, endangered, or special concern animal or plant species.

Shoreline Vegetation

    Under the proposed regulation, PWC operators would be allowed to 
travel along the shoreline wherever motorized vessels are allowed so 
long as they are operated at flat wake speed within 50 feet of the 
shore. Hidden Cave Cove, Painted Canyon, and Seminole Canyon would 
remain closed under the proposed rule to all vessels. Vessels would be 
prohibited from landing on islands during Interior Least Tern nesting 
activities. All vessels operating within harbors, mooring areas, and 
any other areas marked by buoys, are required to operate at flat wake 
speed only. While personal watercraft use occurs throughout the 
reservoir, the primary location for potential impacts would be where 
PWC use is most prevalent. These areas include the San Pedro arm of the 
reservoir (at the end of Spur 454) and the Indian Springs area in the 
upper Devils River arm of the lake. Other impacts include negligible 
short-term wave action and trampling caused by PWC operators landing 
their craft and walking on the shore.
    Fluctuating water levels create more potential for short- and long-
term erosion and impacts to shoreline vegetation than any other 
sources, followed by wind, other motorized boats, and personal 
watercraft. Fluctuating water levels greatly deter the development of 
hydrophytic shoreline vegetative or aquatic vegetation and largely 
prevent the growth of shoreline vegetation.
    Allowing PWC use at Amistad National Recreation Area would have 
negligible adverse impacts to shoreline vegetation over the short and 
long term, with no perceptible changes in plant community size, 
integrity, or continuity. (For an explanation of terms such as 
``negligible'' and ``adverse'' in regard to shorelines see page 130 of 
the Environmental Assessment.)

Visitor Experience

    Impacts on PWC Users. There would be no change to PWC use or 
activity as compared to the conditions during 2002. Therefore, the 
proposed rule would have no new effects on the experiences of PWC users 
at Amistad National Recreation Area.
    Impacts on Other Boaters. Other boaters to Amistad National 
Recreation Area would continue to interact with PWC operators. 
Generally, few nonmotorized craft use Lake Amistad (sea kayaks and 
canoes), so interactions with these user groups are infrequent. 
Motorboats are more likely to interact with PWC. There are three 
locations with the potential for boat/PWC interactions: near the Spur 
454 boat ramp, on the Devils River upstream from the Rough Canyon boat 
ramp, and directly in front of the Diablo East harbor. Although no 
accidents or conflicts have been documented in these areas, the 
potential exists. Based on this analysis, the proposed rule would have 
negligible adverse effects on the visitor experience of other boaters 
for the existing and future conditions. (For an explanation of terms 
such as ``negligible'' and ``adverse'' in regard to visitor experience 
see page 130 of the Environmental Assessment.)
    Impacts on Other Visitors. Swimmers, hikers, and other visitors 
would have contact with PWC users. San Pedro Canyon is a popular PWC 
destination, and new undesignated swim beaches in this area have become 
very popular on weekends, with as many as 60 swimmers at one beach. On 
July 4, 2001 a high of 14 PWC trailers were counted at Spur 454, which 
serves the San Pedro area. Boat ramps at Diablo East and 277 North also 
serve the San Pedro Canyon. PWC use would have moderate adverse effects 
on swimmers in San Pedro Canyon.
    Receding lake levels have led to decreased visitation to park 
campgrounds. Because campgrounds are currently high above the lake 
level, contact between campers and PWC users is low. However, lake 
levels could rise, camping visitation could increase, and contact 
between the two groups could increase. PWC use would have negligible to 
minor adverse effects on visitors to park campgrounds and minor adverse 
effects at higher water levels.
    Boaters often camp along the shoreline (outside park campgrounds) 
and may be affected by PWC use. However, because these undesignated 
campsites are located along the shore, campers would be exposed to 
motorized boat use as well as PWC use. It is likely that these campers 
move on after spending the night, and since PWC use is restricted to 
the hours between sunrise and sunset, they would experience little 
contact with PWC users. PWC use would have negligible adverse effects 
to these campers.
    The primary activities at Amistad National Recreation Area that may 
affect visitor experiences include the number and activities of other 
visitors, and noise from motorboats. No other actions are currently 
planned that would affect PWC use or visitor experiences within the 
national recreation area. According to a 2001 visitor survey, most 
visitors are satisfied with their experiences at the park. Cumulative 
impacts related to the use of personal watercraft, motorized boats, and 
other visitor activities would be negligible over the short and long 
term because there would be little noticeable change in visitor 
experiences, even with projected PWC and boat use increases.
    Continued PWC use at Amistad National Recreation Area would have 
negligible adverse impacts on experiences for most visitors in the 
short and long term. PWC use would have long-term, negligible, adverse 
impacts on shoreline campers, but long-term, minor adverse impacts on 
swimmers and other visitors using official park campgrounds and 
desiring an experience characterized predominantly by natural quiet. 
When related to other visitor activities, PWC use would not appreciably 
limit the critical characteristics of visitor experiences.
    Cumulative effects of PWC use, other watercraft, and other visitors 
would continue to result in long-term, negligible to minor, adverse 
impacts, since there would be little noticeable change in visitor 
experiences. Most visitors would continue to be satisfied with their 
experiences at Amistad National Recreation Area.

Visitor Conflict and Safety

    Few PWC accidents have been reported at Amistad National Recreation 
Area, and there have been some incident reports, most involving PWC 
users and swimmers or other boaters. Staff receive infrequent calls for 
assistance in locating a PWC operator who is overdue or ``missing.'' 
Running out of gas is also a concern and may be hazardous because of 
the vast size of the park. The park conducts regular boat patrols, 
which will help to identify potential PWC/visitor safety issues.
    Divers may be present within the recreation area at submerged ranch 
home locations. No conflicts between PWC users and divers have been 
observed. Divers set buoys to identify their location, so PWC users 
should be able to avoid these areas and any resulting conflicts.
    PWC speeds, wakes, and operations near other users can pose hazards 
and conflicts, especially to canoeists and sea kayakers. Currently very 
few nonmotorized boats are used in the national recreation area, but 
conflicts could occur with personal watercraft, particularly if PWC use 
increased as predicted. To date, few conflicts have been reported.
    PWC User/Swimmer Conflicts. In 10 years it is estimated that an 
average 37 personal watercraft would be in use in the reservoir during 
peak use days. The

[[Page 60311]]

number of swimmers at the reservoir has been decreasing with reductions 
in lake levels, which has led to the creation of several undesignated 
swim beaches.
    The greatest potential for conflict with swimmers is near Diablo 
East and San Pedro Canyon. This is where many of the park's visitors 
swim, and it includes popular PWC boat launches. Buoys warning 
motorized watercraft to keep out of the official swim areas were 
vandalized, and PWC users occasionally enter these areas. Amistad is 
working with the USCG to replace those buoys. Of the five designated 
swim beaches, all but one are in the area of Diablo East or San Pedro 
Canyon. Most currently experience little to no use due to low lake 
levels.
    Of the three new undesignated swim beaches, one is also popular 
with PWC users. All are located in the San Pedro Canyon area. A total 
of approximately 80 to 120 swimmers use these beaches on busy summer 
weekend days. An estimated 20 to 25 personal watercraft are launched in 
this area during peak use days. The potential exists for an accident 
involving a swimmer, particularly if lake levels rise and swimmer 
visitation increases to previous levels. Due to the number of visitors 
involved, impacts at this location are predicted to be moderate 
adverse. Amistad maintains the authority to close areas to swimming or 
PWC use should the conflicts escalate. The NRA will also be seeking to 
increase buoys in swimming areas and work to coordinate land-based and 
water-based patrols to further mitigate the possibility of swimmer/PWC 
conflicts.
    The remaining reservoir locations would have little or no conflict 
between PWC users and swimmers because designated and undesignated swim 
beaches are concentrated in the Diablo East and San Pedro Canyon areas. 
There is one designated swim beach at Rough Canyon, but the swim area 
currently has no water due to low lake levels. Thus, conflicts in other 
areas would constitute negligible, adverse impacts over the short and 
long term. All motorized vessels are prohibited from entering 
designated swimming areas. The recreation area continues to work with 
the USCG to install buoys informing boaters to ``Keep Out'' of swimming 
areas.
    Overall, PWC use would have minor adverse impacts on swimmers at 
Amistad National Recreation Area. Impacts would be perceptible to a 
relatively small number of visitors at localized areas, primarily at 
San Pedro Canyon where the undesignated beaches exist.
    PWC Users/Other Boater Conflicts. Other motorized watercraft are 
distributed throughout the reservoir. Their use patterns are not 
exactly the same as those for personal watercraft, but the two groups 
do use the same areas. Motorboats are concentrated in the Castle Canyon 
area, the Devils River area between the Devils Shores subdivision and 
Indian Springs, and the area in front of Amistad Dam. The same launch 
ramps that are popular with PWC users are also popular with 
motorboaters. The Spur 454 boat ramp, Devils River upstream of the 
Rough Canyon boat ramp, and the area in front of the Diablo East harbor 
have the most potential for conflicts between PWC users and 
motorboaters. These three launch areas experience the highest visitor 
use. Traffic gets congested in these areas, which increases the risk of 
collision and the potential for conflicts. Because both motorized boat 
and PWC use are projected to increase each year (2% and 1.5% 
respectively), the potential for conflicts could increase in this area, 
resulting in minor to moderate adverse impacts.
    The remaining areas of the reservoir would experience negligible 
conflicts between PWC users and other motorboaters, due to the small 
number of watercraft being launched at these areas.
    Overall, PWC use would continue to have minor adverse impacts on 
other motorized boat users at Amistad National Recreation Area. Impacts 
would be perceptible to visitors at localized areas, primarily at Spur 
454, Devils River upstream of Rough Canyon, and the Diablo East harbor. 
Conflicts at other locations would remain negligible because use is 
lower, and conflicts would be less likely to occur.
    Allowing PWC use would have short- and long-term, minor to moderate 
adverse impacts on visitor conflicts and safety in the areas near Spur 
454, the Devils River upstream of Rough Canyon, and in front of the 
Diablo East harbor due to the number of visitors and boats present on 
high use days. Conflicts at other locations would remain negligible 
because use is lower, and conflicts would be less likely to occur.
    Cumulative impacts related to visitor conflicts and safety would be 
minor to moderate for all user groups in the short and long term, 
particularly near the three areas listed above. Cumulative impacts in 
other segments would be negligible because of reduced use.

Cultural Resources

    Under the proposed rule, PWC use would be allowed within Amistad 
National Recreation Area with few locational restrictions. PWC users 
would continue to have access to archeological and submerged cultural 
resources under this alternative. Four national historic districts 
within the national recreation area are listed on the National Register 
of Historic Places; additional sites are located outside the districts. 
Not all identified sites have been formally evaluated for national 
register eligibility.
    The most likely impact to archeological and submerged cultural 
sites would result from PWC users landing in areas and illegally 
collecting or damaging artifacts. According to park staff, looting and 
vandalism of cultural resources is not a substantial problem. A direct 
correlation of impacts attributed to PWC users is difficult to draw, 
since many of these areas are also accessible to hikers or other 
watercraft users. Under this proposed rule the low number of PWC users 
within the national recreation area would have only minor adverse 
impacts on potentially listed archeological resources.
    Allowing PWC use under this proposed regulation is not expected to 
negatively affect the overall condition of cultural resources because 
site specific condition inventories, surveys and mitigation would still 
be conducted. To further reduce the likelihood of damage to cultural 
resources, this rule proposes to close all or a portion of Hidden Cave 
Cove, Painted Canyon, Seminole Canyon and all terrestrial cave and 
karst features. Closing these areas will protect a variety of resources 
but most noteably the cultural resources located in these areas 
including cave drawings and lithic artifacts.
    PWC use within the national recreation area could have minor 
adverse impacts on potentially listed archeological sites and submerged 
resources from possible illegal collection and vandalism. (For an 
explanation of terms such as ``negligible'' and ``adverse'' in regard 
to cultural resources see page 145 the Environmental Assessment.)
    On a cumulative basis impacts to all visitor activities could 
result in minor to moderate adverse impacts on those resources that are 
readily accessible, due to the number of visitors and the potential for 
illegal collection or destruction. PWC use could have minor adverse 
impacts on cultural resources from possible illegal collection and 
vandalism.

[[Page 60312]]

    Therefore implementation of this proposed rule would not result in 
an impairment of cultural resources.

The Proposed Rule

    PWC use would be allowed under a special regulation in 36 CFR 7.79 
and would be managed consistent with the management strategies in 
effect before November 7, 2002. PWC users could travel wherever other 
motorized vessels are allowed. Under the present ``Superintendent's 
Compendium,'' Hidden Cave Cove, Painted Canyon and Seminole Canyon are 
closed to all vessels. Due to Homeland Security concerns, the water 
extending 1000 feet from Amistad Dam is closed to all boating use, 
motorized and non-motorized. Consistent with the current 
``Superintendent's Compendium'', the proposed rule prohibits all PWC 
users (and others under the Compendium authority), from landing in 
areas with interior least tern nesting colonies. Terns nest on islands 
and peninsulas on the lake from May 1 through August 31. To avoid 
disturbing nesting activity, these areas are closed to all public use 
during the nesting season, and signs are posted to warn visitors not to 
approach. Additionally, the staff at Amistad enforces 36 CFR part 3 
regulations. These regulations adopt all non-conflicting State of Texas 
watercraft laws and regulations.

Compliance With Other Laws

Regulatory Planning and Review (Executive Order 12866)

    This document is a significant rule and has been reviewed by the 
Office of Management and Budget under Executive Order 12866.
    (1) This rule will not have an effect of $100 million or more on 
the economy. It will not adversely affect in a material way the 
economy, productivity, competition, jobs, the environment, public 
health or safety, or State, local, or tribal governments or 
communities. The National Park Service has completed the report 
``Economic Analysis of Personal Watercraft Regulations in Amistad 
National Recreation Area'' (MACTEC Engineering, November 2002).
    (2) This rule will not create a serious inconsistency or otherwise 
interfere with an action taken or planned by another agency. Actions 
taken under this rule will not interfere with other agencies or local 
government plans, policies or controls. This rule is an agency specific 
rule.
    (3) This rule does not alter the budgetary effects of entitlements, 
grants, user fees, or loan programs or the rights or obligations of 
their recipients. This rule will have no effects on entitlements, 
grants, user fees, or loan programs or the rights or obligations of 
their recipients. No grants or other forms of monetary supplements are 
involved.
    (4) This rule does raise novel legal or policy issues. This rule is 
one of the special regulations being issued for managing PWC use in 
National Park Units. The National Park Service published general 
regulations (36 CFR 3.24) in March 2000, requiring individual park 
areas to adopt special regulations to authorize PWC use. The 
implementation of the requirement of the general regulation continues 
to generate interest and discussion from the public concerning the 
overall effect of authorizing PWC use and National Park Service policy 
and park management.

Regulatory Flexibility Act

    The Department of the Interior certifies that this rulemaking will 
not have a significant economic effect on a substantial number of small 
entities under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). 
This certification is based on a report entitled ``Economic Analysis of 
Personal Watercraft Regulations in Amistad National Recreation Area'' 
(MACTEC Engineering, November 2002).

Small Business Regulatory Enforcement Fairness Act (SBREFA)

    This rule is not a major rule under 5 U.S.C. 804(2), the Small 
Business Regulatory Enforcement Fairness Act. This proposed rule:
    a. Does not have an annual effect on the economy of $100 million or 
more.
    b. Will not cause a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions.
    c. Does not have significant adverse effects on competition, 
employment, investment, productivity, innovation, or the ability of 
U.S.-based enterprises to compete with foreign-based enterprises.

Unfunded Mandates Reform Act

    This rule does not impose an unfunded mandate on State, local, or 
tribal governments or the private sector of more than $100 million per 
year. The rule does not have a significant or unique effect on State, 
local or tribal governments or the private sector. This rule is an 
agency specific rule and does not impose any other requirements on 
other agencies, governments, or the private sector.

Takings (Executive Order 12630)

    In accordance with Executive Order 12630, the rule does not have 
significant takings implications. A taking implication assessment is 
not required. No taking of personal property will occur as a result of 
this rule.

Federalism (Executive Order 13132)

    In accordance with Executive Order 13132, the rule does not have 
sufficient federalism implications to warrant the preparation of a 
Federalism Assessment. This proposed rule only affects use of NPS 
administered lands and waters. It has no outside effects on other areas 
by allowing PWC use in specific areas of the park.

Civil Justice Reform (Executive Order 12988)

    In accordance with Executive Order 12988, the Office of the 
Solicitor has determined that this rule does not unduly burden the 
judicial system and meets the requirements of sections 3(a) and 3(b)(2) 
of the Order.

Paperwork Reduction Act

    This regulation does not require an information collection from 10 
or more parties and a submission under the Paperwork Reduction Act is 
not required. An OMB Form 83-I is not required.

National Environmental Policy Act

    The National Park Service has analyzed this rule in accordance with 
the criteria of the National Environmental Policy Act and has prepared 
a draft Environmental Assessment (EA). The EA was available for public 
review and comment from April 9, 2003 to May 3, 2003. Copies of the 
environmental assessment may be downloaded at http://www.nps.gov/amis/pwc.pdf or obtained at park headquarters Monday through Friday, 8am to 
5pm, just west of Del Rio at 4121 Hwy 90 W. Mail inquiries should be 
directed to: Amistad National Recreation Area, HCR 3 Box 5J, Del Rio TX 
78840, Phone (830) 775-7491.

Government-to-Government Relationship With Tribes

    In accordance with the President's memorandum of April 29, 1994, 
``Government to Government Relations with Native American Tribal 
Governments'' (59 FR 22951) and 512 DM 2 have evaluated potential 
effects on federally recognized Indian tribes and have determined that 
there are no potential effects.
    There are 17 tribes with historical ties to the lands of the 
Amistad NRA. However, none of those tribes have any

[[Page 60313]]

current association with Amistad nor are there any tribes with close 
geographic ties to the area. Since any actions the park proposes in 
this rule are not expected to have any effects on these 17 tribes, no 
consultation has occurred.

Clarity of Rule

    Executive Order 12866 requires each agency to write regulations 
that are easy to understand. We invite your comments on how to make 
this rule easier to understand, including answers to questions such as 
the following: (1) Are the requirements in the rule clearly stated? (2) 
Does the rule contain technical language or jargon that interferes with 
its clarity? (3) Does the format of the rule (grouping and order of 
sections, use of headings, paragraphing, etc.) aid or reduce its 
clarity? (4) Would the rule be easier to read if it were divided into 
more (but shorter) sections? (A ``section'' appears in bold type and is 
preceded by the symbol ``Sec.  '' and a numbered heading; for example 
Sec.  7.79 Amistad Recreation Area. (5) Is the description of the rule 
in the ``Supplementary Information'' section of the preamble helpful in 
understanding the proposed rule? What else could we do to make the rule 
easier to understand?
    Send a copy of any comments that concern how we could make this 
rule easier to understand to: Office of Regulatory Affairs, Department 
of the Interior, Room 7229, 1849 C Street, NW, Washington, DC 20240. 
You may also email the comments to this address: [email protected].
    Drafting Information: The primary authors of this regulation are: 
Mark Morgan, Management Assistant, and Rick Slade, Chief of 
Interpretation, Amistad NRA; Sarah Bransom, Environmental Quality 
Division; and Kym Hall, NPS Washington, DC.

Public Participation

    If you wish to comment, you may submit your comments by any one of 
several methods. You may mail comments to Amistad National Recreation 
Area, HCR 3 Box 5J, Del Rio TX 78840. You may also comment via the 
Internet to [email protected]. Please also include ``PWC Rule'' in the 
subject line and your name and return address in the body of your 
Internet message. Finally, you may hand deliver comments to Amistad 
National Recreation Park, 4121 Highway 90 West, Del Rio, Texas.
    Our practice is to make comments, including names and addresses of 
respondents, available for public review during regular business hours. 
Individual respondents may request that we withhold their home address 
from the rulemaking record, which we will honor to the extent allowable 
by law. If you wish us to withhold your name and/or address, you must 
state this prominently at the beginning of your comment. However, we 
will not consider anonymous comments. We will make all submissions from 
organizations or businesses, and from individuals identifying 
themselves as representatives or officials or organizations or 
businesses, available for public inspection in their entirety.

List of Subjects in 36 CFR Part 7

    District of Columbia, National Parks, Reporting and recordkeeping 
requirements.
    In consideration of the foregoing, the National Park Service 
proposes to amend 36 CFR part 7 as follows:

PART 7--SPECIAL REGULATIONS, AREAS OF THE NATIONAL PARK SYSTEM

    1. The authority for Part 7 continues to read as follows:

    Authority: 16 U.S.C. 1, 3, 9a, 460(q), 462(k); Sec. 7.96 also 
issued under D.C. Code 8-137(1981) and D.C. Code 40-721 (1981).

    2. Add new paragraph (d) to Sec.  7.79 to read as follows:


Sec.  7.79  Amistad Recreation Area.

* * * * *
    (d) Personal Watercraft (PWC).
    (1) PWCs are allowed within Amistad National Recreation Area with 
the following exceptions:
    (i) The following areas are closed to PWC use:
    (A) Hidden Cave Cove (where marked by buoys), located on the Rio 
Grande.
    (B) Painted Canyon (where marked by buoys), located on the Rio 
Grande.
    (C) Seminole Canyon, starting 0.5 miles from the mouth of the Rio 
Grande.
    (D) Government coves at Diablo East and Rough Canyon to include the 
water and shoreline to the top of the ridge/property line.
    (E) All terrestrial cave and karst features.
    (F) The Lower Rio Grande area below Amistad Dam.
    (G) The water area extending 1000 feet out from the concrete 
portion of Amistad Dam.
    (ii) PWC are prohibited from landing on any island posted as 
closed.
    (2) The Superintendent may temporarily limit, restrict or terminate 
access to the areas designated for PWC use after taking into 
consideration public health and safety, natural and cultural resource 
protection, and other management activities and objectives.

    Dated: October 14, 2003.
Paul Hoffman,
Acting Assistant Secretary, Fish and Wildlife and Parks.
[FR Doc. 03-26577 Filed 10-21-03; 8:45 am]
BILLING CODE 4310-70-P